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A FLEXIBLE FRAMEWORK FOR ADDRESSING CHEMICAL ACCIDENT PREVENTION AND PREPAREDNESS

A Guidance Document

Copyright © United Nations Environment Programme, 2010

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Background

The United Nations Environmental Programme (UNEP) is leading an international initiative to promote chemical accident prevention and preparedness. The initiative focuses on the development and implementation of a Flexible Framework for Addressing Chemical Accident Prevention and Preparedness (Guidance), which offers guidance for governments wanting to develop, review or strengthen their national chemical accidents prevention and preparedness programmes.

The initiative is part of UNEP’s efforts to promote chemical safety in fast-growing economies that are experiencing a rapid industrialisation process and need support to address industrial chemical accident prevention and preparedness. The Guidance builds on more than 30 years of experience in addressing chemical accident prevention following several chemical accidents in the mid 1980’s.

The Guidance (an IOMC1 publication) takes into account international agreements in this area (especially the ILO2 and UNECE3 conventions), key national/regional laws/regulations (in particular the Seveso II Directive of the European Union and laws of the United States of America) and other international guidance materials (such as UNEP’s APELL4 Programme and the OECD5 Guiding Principles for Chemical Accident Prevention, Preparedness and Response).

Implementation projects with a number of countries have already been initiated and proposals for further projects are under development.

Guidance for national governments

The Guidance offers in-depth information on critical elements of an industrial chemical accident prevention and preparedness programme, based on international references. It also contains practical information addressed to national governments on how to develop such a programme.

More specifi cally, the Guidance:

describes the steps that are needed before developing and • implementing laws, regulations, policies, guidance or other instruments which would make up an effective chemical accidents prevention and preparedness programme;

sets out the possible elements of such instruments; and•

provides resource materials related to how these elements may • be implemented.

The Guidance is available for download at: http://www.unep.fr/scp/sp/saferprod/initiatives.htm

Inter-Organisation Programme for the Sound Management of Chemicals

International Labour Organization Convention concerning the Prevention of Major Industrial Accidents (C174)

United Nations Economic Commission for Europe Convention on the Transboundary Effects of Industrial Accidents

Awareness and Preparedness for Emergencies at Local level

Organisation for Economic Co-operation and Development

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In order to coordinate the development and implementation of the Guidance, a UNEP Expert Working Group was created, involving selected experts and institutions in the fi elds of chemical safety and prevention of industrial accidents. The group included representatives from relevant UN agencies (UNEP, UNIDO, ILO, UNECE, UNITAR, WHO, Joint UNEP/OCHA Environment Unit, etc.), the European Commission (DG Environment and the Joint Research Center), the Organisation for Economic Co-operation and Development, the Asian Disaster Preparedness Centre, selected countries, and industrial associations, as well as independent experts.

© Image courtesy of the U.S. Chemical Safety and Hazard Identifi cation Board

A suggested step-by-step process

The Guidance suggests a step-by-step process for developing or improving a national chemical accident prevention and preparedness programme. Although the steps are presented in sequence, it is stressed that this is an iterative process and it may be necessary to revisit or repeat steps at different points.

*These activities should be continued and sustained throughout the other phases of the project as well.

IMPLEMENTATION PHASESecure resources (staff, • funding, etc.)

Access and share information•

Create administrative and legal • structures

Facilitate implementation by • others (leadership)

Enforce requirements•

INITIAL PHASE (Continuous)* Secure and maintain political commitments•

Identify relevant government bodies for cooperation•

Establish consultative process among key stakeholders •

DEVELOPMENT PHASEConsult key stakeholders•

Review political imperatives•

Develop strategy and time line•

Defi ne priorities•

Choose/adapt programme • elements

ASSESSMENT PHASEConsult key stakeholders•

Assess accident potential • and impact

Understand legal context•

Identify available resources•

REVIEW AND REVISION PHASE

© Image courtesy of the U.S. Chemical Safety and Hazard Identifi cation Board

The Scope of the Programme

Scope Under the “Scope”, information related to the defi nition of types of industries, facilities, and/or substances covered by a chemical accident prevention and preparedness programme is provided.

The Role of Competent Authorities

Information ManagementUnder the “Role of Competent Authorities”, information is provided in relation to activities generally carried out by identifi ed government bodies.

Inspections

Preparedness Planning

Siting and Land-Use Planning

Requirements of Industry

General Duty Clause

Under the “Requirements of Industry”, types of requirements generally imposed on industry or undertaken by industry to meet an obligation to operate their installations safely are specifi ed.

Notifi cation

Prevention Policy and Safety Management Systems

Hazard Identifi cation and Risk Assessment

Safety Reports

Preparedness Planning

Information to the Public

Information to the Public This section describes the types of information that should be provided to those potentially affected in the event of an accident.

Accident Reporting, Investigation, and Follow-up

Accident Reporting, Investigation, and Follow-Up

This section provides information on accident reporting and investigations which could be pursued in order to learn and share lessons to improve safety.

Elements of a chemical accident prevention and preparedness programme

The Guidance provides information on elements that are generally contained in a comprehensive programme for chemical accident prevention and preparedness. The following key elements are proposed.

For each of the above sections, information related to the rationale, practical application and possible pitfalls is provided. Excerpts from international instruments are also provided as references.

© Image courtesy of the U.S. Chemical Safety and Hazard Identifi cation Board

Who is the Guidance for?

The Guidance is addressed primarily to national government authorities that are seeking to develop, review or strengthen their chemical accident prevention and preparedness programmes. It can also be used to review existing programmes in order to make improvements, identify gaps, or facilitate implementation of agreements and standards.

Thus, the Guidance should be helpful to countries with little or no activities or systems in place to address chemical accident prevention or preparedness, as well as countries that have some competencies in this area and want to strengthen their existing systems.

Why have a national chemical accident prevention and preparedness programme? The most important reason to establish a chemicals accidents programme is to prevent accidents from happening and limit any impacts should they occur, thereby avoiding or minimising harm to people and damage to the environment and property.

Chemical-related accidents can cause direct immediate harm to those on site of the accident and to others in the vicinity. Toxic releases from accidents can also cause longer term or indirect health impacts and can also contaminate water and soil used for drinking and agricultural purposes.

An effective chemical accident prevention programme is also a wise investment as it is less expensive to take appropriate actions to prevent accidents than it is to deal with the impacts of an accident.

What does the Guidance focus on? The Guidance focuses on prevention and preparedness for industrial accidents at “hazardous installations” which include places where hazardous substances are produced, processed, used, handled or stored in such quantities and under such conditions that a chemical accident could occur. The types of accidents addressed by the Guidance would include any loss of containment, explosion, or fi re involving chemicals which pose a risk to human health or the environment.

UNEP would welcome to hear from countries that may be interested in implementing the Guidance or partnering with UNEP to fund implementation projects in order to contribute to promoting chemical accident prevention and preparedness worldwide.

Contacts

Mrs. Ruth Couttoruth.coutto@unep.orgT: +33 1 44 37 16 34

Mr. Kaj Madsenkaj.madsen@unep.orgT: +41 22 917 82 58

The Guidance isavailable for download at: http://www.unep.fr/scp/sp/saferprod/initiatives.htm

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For more information,

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About the UNEP Division of Technology,Industry and Economics

The UNEP Division of Technology, Industry and Economics

(DTIE) helps governments, local authorities and decision-

makers in business and industry to develop and implement

policies and practices focusing on sustainable development.

> sustainable consumption and production,

> the effi cient use of renewable energy,

> adequate management of chemicals,

> the integration of environmental costs in development policies.

The Offi ce of the Director, located in Paris, coordinates activities through:> The International Environmental Technology Centre - IETC (Osaka, Shiga),

which implements integrated waste, water and disaster management

programmes, focusing in particular on Asia.

> Sustainable Consumption and Production (Paris), which promotes

sustainable consumption and production patterns as a contribution to human

development through global markets.

> Chemicals (Geneva), which catalyzes global actions to bring about the sound

management of chemicals and the improvement of chemical safety worldwide.

> Energy (Paris), which fosters energy and transport policies for sustainable

development and encourages investment in renewable energy and energy

effi ciency.

> OzonAction (Paris), which supports the phase-out of ozone depleting substances

in developing countries and countries with economies in transition to ensure

implementation of the Montreal Protocol.

> Economics and Trade (Geneva), which helps countries to integrate environmental

considerations into economic and trade policies, and works with the fi nance

sector to incorporate sustainable development policies.

The Division works to promote:

UNEP DTIE activities focus on raising awareness,

improving the transfer of knowledge and information,

fostering technological cooperation and partnerships, and

implementing international conventions and agreements.

Chemical-related industrial accidents

can cause harm to people and

damage to the environment and

property.

An effective chemical accident

prevention and preparedness

programme will help avoid accidents

and minimise impacts on the health

of people and on the environment

should they occur. As part of

a new initiative led by UNEP, a

Flexible Framework for Addressing

Chemical Accident Prevention

and Preparedness has been

developed, offering Guidance for

governments wanting to develop,

review, or strengthen their national

chemical accidents prevention and

preparedness programmes.

An overview of the Guidance is

provided in this brochure as well as

contact information for countries

wishing to fi nd out more.

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